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CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS Case study synthesis
Neelam Maharaj1 and Bruce Rasmussen1,2 1Institute of Sustainable Industries and Liveable Cities, Victoria
University 2 Bushfire and Natural Hazards CRC
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
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1.0 Initial release of document 8/8/18
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The Victoria Institute of Strategic Economic Studies at Victoria University
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Publisher:
Bushfire and Natural Hazards CRC
ISBN: 978-1-86272-782-3
August 2018
Citation: Rasmussen B, Maharaj N. Changing capabilities of
emergency services organisations. case synthesis. Bushfire and Natural
Hazards CRC, Melbourne Victoria 2018.
Cover: Bigstock, 2018
Acknowledgements: We would also like to acknowledge the support
of the Bushfire and Natural Hazards CRC and the Commonwealth of
Australia through the Cooperative Research Centre Program.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
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TABLE OF CONTENTS
INTRODUCTION 3
QUEENSLAND FIRE AND EMERGENCY SERVICES 6
How QFES and its predecessor organisations described their changing capabilities 6
Strategic capabilities 7
Prevention preparing and responding to natural disasters 8
Implications of changing capabilities for skill requirements 10
Summary 12
FIRE AND RESCUE NEW SOUTH WALES 15
Strategic challenges 15
Prevention, preparation and responding to natural disasters 17
Aboriginal and Torres Strait Islander communities 20
CALD communities 21
Other communities 22
Training 23
Summary 23
SOUTH AUSTRALIAN STATE EMERGENCY SERVICES 25
Strategic challenges 25
Prevention, preparedness and response 25
Technology 26
Background to the SASES workforce structure 27
Summary 29
CONCLUSIONS 30
TRENDS IN TASKS UNDERTAKEN BY THE CASE STUDY ESOS 32
Summary 34
REFERENCES 35
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INTRODUCTION
In our literature review on the costs and benefits of increasing diversity, we also
outlined the changing context in which emergency service organisations (ESOs)
(that include emergency management) were operating. In summary, the change in
the context was due to:
• The increasing frequency and severity of natural disasters due to climate
change (National Strategy for Disaster Resilience) (COAG, 2011)
• The increased availability of new and improved technology to respond to
natural disasters
• The increased need to serve a much more diverse community (Smiley, 2010, pp
24, 30).
This has meant that both the capabilities and the tasks undertaken by the ESOs have
had to change to respond to this changing context, and tasks have changed as
demonstrated by the types of incidents and emergencies attended.
These new capabilities and new tasks could be undertaken by retraining the existing
workforce. However, the development of these new capabilities and new tasks
provides an opportunity to recruit new staff with the required skills from more diverse
backgrounds to undertake these new and/or expanding tasks. The literature review
suggested that a well-managed, more diverse workforce could produce better
performance outcomes for tasks of increasing complexity. In some areas such as
new technology capabilities and communication with diverse communities, it may
be necessary to recruit those with more diverse backgrounds to meet basic
operational objectives.
It is readily acknowledged that this changing context is not the only driver of
increasing work force diversity. There are cultural, ethical and equity reasons for
increasing workforce diversity. However, the economic case ultimately depends on
diversity leading to better performance. Just how that potentially improved
performance is to be measured is yet to be developed. It is likely to be a complex
combination of financial (e.g., reduced costs) and broader economic benefits. This
will be done in the later stages of this project.
The purpose of this report is to focus on changing capabilities and tasks. It will also
identify the following from annual reports and strategy documents:
• Intended changes in capabilities which respond to the changing context in
which ESOs operate
• Actual changes which have been described in annual reports
• Changes in tasks and the way in which these are a response to the changing
context.
Both the intention and the extent of the changed capabilities is documented in the
strategy documents and annual reports of the ESOs. We have undertaken a review
of these documents to track their changing capabilities over the last decade.
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Organisational capability is the ability and capacity of an organisation expressed in
terms of its:
1. Human resources: their number, quality, skills and experience
2. Physical and material resources: machines, land and buildings
3. Financial resources: money and credit
4. Information resources: pool of knowledge and databases
5. Intellectual resources: copyrights, designs, patents, etc. (De Vita et al., 2001;
WebFinance Inc., 2017).
The extent to which these changed capabilities are reflected in changing tasks
undertaken by ESOs is demonstrated by data on types of incidents and
emergencies attended, available from some of their annual reports. An analysis of
this data follows the discussion of ESO capabilities.
Given the changing context, we might have expected emergency management
organisations (EMOs) to be:
• Diversifying their human resources to introduce new skills to reflect the need for a
greater emphasis on disaster planning and response, such as improved
community communication skills, IT skills and workplace training skills. This by itself
would diversify the characteristics of the workforce, e.g., more women and
those with different ethnic, language and cultural backgrounds, better
reflecting the increased diversity of the community.
• Investing in physical and material resources to improve their capability to deal
with more frequent and extreme natural disasters arising from climate change.
This may have included more advanced equipment, greater use of new
communication and spatial technologies, and better vehicles, ladders, and
aerial capabilities.
• Increasing their use of information resources, e.g., weather, mapping, etc.,
providing more employment opportunities for those with the skills to interpret and
use these resources.
Our initial evidence base for evaluating the degree to which ESOs have changed in
the manner anticipated is to review annual reports and strategic and other plans of
these organisations in Queensland, New South Wales and South Australia. Several of
these articulate the need to increase diversity within their workforce to better
connect and communicate with the communities they serve (for example, QFES,
2017a). Workplace culture plays a large part in accommodating and maintaining a
diverse workforce.
The South Australian State Emergency Service (SASES) has had problems in retaining
and recruiting sufficient volunteers and in offering training to those they did have,
due to a significant decline in volunteer trainers in 2010 and reduced financial
support. Since then, it has had some increase in funding for recruitment of new staff,
and it has mapped its workforce to help form a broader workforce development
plan. It has also improved its training through its Capability Management Framework.
While only one of its reports mentioned the need for diversity and inclusion (SASES,
2017a), it does have a significant representation of females in its workforce. There is
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
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no indication if it has people from different backgrounds, such as Aboriginal and
Torres Strait Islanders, on their staff. However, it does see the need for an appropriate
value and behaviour framework for its workforce.
We have attempted to extract relevant evidence from these documents and
assemble it in the tables presented at the end of each section below.
Overall, the ESO sector in Queensland has the most articulated strategy to improve
their organisational capability. It has classified its organisational capabilities into
strategic service delivery, operational support and business support capabilities.
However, the sector in New South Wales might not have expressed its strategy as
comprehensively, but it has brought about significant changes to the culture of their
organisation. Changing the culture of organisations is one of the most effective ways
of improving capabilities as it assists in recruiting and retaining a diverse workforce
with diverse capabilities.
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QUEENSLAND FIRE AND EMERGENCY SERVICES
HOW QFES AND ITS PREDECESSOR ORGANISATIONS DESCRIBED THEIR CHANGING CAPABILITIES
The Queensland Fire and Emergency Services (QFES) provides a good example of
how emergency service organisations (ESOs) in Australia are articulating their
changed organisational capability.
QFES classified their organisational capabilities into the following categories:
• Strategic capabilities, e.g. planning, communications and liaison, and activities
that enable performance and delivery of values that matter to stakeholders and
the community
• Service delivery capabilities, which include:
- Prevention and preparedness, e.g., disaster management plan, training,
community education, mitigation and risk reduction, etc.
- Response, e.g., communication, rescue and response
- Recovery, e.g., assessment, management, reconstruction, community care
and rehabilitation.
• Operational support capabilities, e.g., engineering, training delivery, research,
logistics, etc.; activities that support delivery of PPRRS services
• Business support capabilities, e.g., IR, HR services, culture and change
management, legal and finance services. (QFES 2017a, p. 180)
To address capability needs, QFES recognise that they need to develop:
• Culture – one that embraces and reflects the diversity of the community that
they serve through:
- Leaders driving the change
- Valuing the workforce by recognising and rewarding their success
- Providing a workplace that supports the safety of the workforce and the
people they serve, physically, emotionally and psychologically
• Leadership – ensuring strong leaders in the future as:
- Leaders drive all levels of performance
- The workforce embraces personal responsibility for performance
- Leaders visibly engage with the workforce
- HR technologies are leveraged to maximise productivity and reduce
manual processing
- Policies and procedures ensure organisational efficiency
• Developing critical talent – so that the organisation develops skills that are best
suited to developing resilience in the local communities which will thus ensure
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that:
- The workforce embraces personal responsibility and continues self-directed
learning and commitment to personal leadership and development
- Identifies workforce skills, capability gaps and high-performing talent
- Actively manages the workforce through every career stage
• Service focused structure – to ensure greater clarity around accountability and
a culture that demonstrates innovation, proactive behaviours and key
partnerships
• Workforce capability – to be achieved through training priorities and training
delivery aligned to the mission, values and standards, and making certain that
the workforce is adequately prepared to meet the strategic challenges facing
them and their communities. (QFES, 2017a, p19)
Some of the changes in the QFES have also been brought about by the Allison
Review (Allison, 2014), which made several recommendations centred around
improving gender equity, maintaining a safe environment for all staff and having
better organisational response to complaints (p7).
The QFES, in specifying their capabilities and needs, exemplify the diagram in Young
et al. ‘A framework for addressing non-profit capacity building’ (Figure 6, Young et
al. 2018, p40), where the leadership drive change through specifying the vision and
values of the organisation (and vice versa), which then flows through to developing
the critical talent and workforce capability. The QFES specify their own vision as
demonstrated in Figure 1.
FIGURE 1. QFES BUSINESS MODEL AREAS UNDERGOING CHANGE (QFSES, 2017A, P7).
STRATEGIC CAPABILITIES
The changes in the QFES strategic capabilities are reflected in the articulation in their
annual reports of:
• The strategic challenges they face
• How they prevent, prepare, and respond to bushfires and natural disasters
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• The changes in technology.
Strategic challenges
In 2004-05, the major challenge perceived by the QFES was enhancing rural/remote
indigenous capacity. The other challenges included improving building fire safety
and improving safety outcomes for at-risk groups. Enhancing disaster mitigation and
management capability and capacity was also a major strategic challenge for the
service, as was enhancing community safety initiatives and programs.
By 2011-12, there was recognition of the increasing demand from an aging and
more diverse population with higher expectations, as well as the logistical issues
associated with servicing remote communities, while maintaining community
confidence with a challenging fiscal environment. Another a major challenge was
seen to be the capacity to operate effective communications for front line services,
while retaining and developing a motivated paid and volunteer workforce.
By 2016-17, the major strategic challenge stated in its annual report was the
demands from the continuing growth in the population, combined with its diversity
and geographic dispersal. The other challenges included the predicted increases in
the severity and frequency of natural disasters, changing community expectations
from government services, while the volunteer landscape also faced changes. A
new challenge mentioned in the 2016-17 Annual Report was the crime and safety
threats posed by technological advancements and violent extremism.
PREVENTION PREPARING AND RESPONDING TO NATURAL DISASTERS
In 2004-05, the QFES’ preparedness was embodied in the Bushfire Prepared
Communities initiative that identified individuals living in and near bushland or in
semi-rural areas, and encompassed a television awareness campaign, brochures
and a community group training package with a CD, video and instructor training.
Fire safety brochures were translated into different languages for people whose first
language was not English. The prevention of disasters was through the disaster
mitigation program which included measures such as increasing the resilience of
infrastructure, undertaking risk assessments, conducting community awareness
campaigns, improving warning systems and engaging in research. A total of $8.1
million for 38 new projects was provided for and also an additional $3.77 million for
35 projects for previous risk studies.
By 2011-12, $22 million was provided for 56 projects. Natural risk hazard assessments
were developed for 19 councils. There was also a flood risk management study,
construction of fire trails and the implementation of automatic rainfall and river
height monitoring.
The QFES had further strengthened the State’s bushfire capability through enhanced
coordination of activities and improved engagement with communities. Operation
Cool Burn assists in land management and fuel reduction, and mitigation of bushfire
risk. A network of Area Fire Management Groups, assists with local coordination of
bushfire preparedness, prevention and mitigation activities of the service. These
groups also help to identify hotspots for mitigation activities. The Predictive Services
Unit (PSU) provides outlooks by working closely with the Bushfire and Natural Hazards
CRC and the Australian Fire and Emergency Services Authorities Council. QFES has
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developed several partnerships to mitigate the threat of bushfires through its REDI-
PORTAL (Risk Evaluation and Disaster Information), which maps information such as
fire history and vegetation hazards to identify risks and enable prioritising mitigation.
Operation Unified uses sophisticated fire simulation programs developed and
provided by the PSU, which also provides briefings on a fortnightly basis for key QFES
staff.
Community safety programs in 2016-17 included education campaigns to improve
community safety and resilience through their ‘If it’s flooded, forget it’ campaign,
which tracks storm and flood seasons; provision on its website so people could
complete and print their own Bushfire Survival Plan; and home fire safety campaigns
which encourage residents to prepare their homes for quick evacuation.
The QFES works on its cultural capability through its Aboriginal and Torres Strait
Islander Engagement Strategy 2015-2019, and its Aboriginal and Torres Islander
Cultural Capability Action Plan 2016-17. It has also developed a culturally and
linguistically Diverse Customer Information Implementation Plan outlining the process
of implementing the collection, analysis and publication of its diverse customer
base. It also has a plan to educate, inform and engage people with disabilities to
improve their safety.
Changes in technology
The changes in technology have also had an enormous impact on the organisation.
In 2004-05, QFES simply ran a 24-hour hot line with up-to-date information on
bushfires on a website (Department of Emergency Services, 2005, p35). By 2011-12, it
had added a ‘Current Bushfire Incident’ feature on the website, which had an easy
to navigate page enabling the public to see where the bushfires were burning,
where the resources were deployed and details on how to act when the community
was threatened. The incident information was updated every 30 minutes and it had
real-time data from diverse sources, such as the Bureau of Meteorology and
Department of Transport in near-real time on interactive maps (Department of
Community Safety, 2012, pp 33, 35). By 2017, it had a disaster management portal,
which included interactive maps with a layer for each LGA. It also had an Events
Management System (EMS) which provided real-time situational awareness and
decision support through automation and which replaced 5 different systems and
paper based entries with a single cloud-based system that can be accessed
anywhere where the internet is available (QFES, 2017c, p39). It also has e-contact,
which helps build community resilience through social media (p40).
QFES has faced the above challenges in different areas as follows. In the area of
bushfire and disaster mitigation, it used to run television awareness campaigns,
supply brochures and provide group training packages (Department of Emergency
Services, 2005, p33). It then moved on to developing natural hazard risk assessments
for local councils, constructing fire trails, undertaking a flood risk management study
and monitoring river height through automatic rainfall measurement (Department of
Community Safety, 2012, p34). By 2017, it had a Predictive Services Unit, which
enables managers to identify where the risks are and thus help to prioritise mitigation
(QFES, 2017c, pp 34-35). It also had a network of management groups that assisted
with local coordination and it ran Operation Cool Burn, which helps QFES and its
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partners in land management and local government focus on fuel reduction and
mitigation of bushfire risk across Queensland (p35).
Training has progressed from basic fire management training (Department of
Emergency Services, 2005, p40), to also developing skills for potential weather events
through exercises conducted during hypothetical scenarios (Department of
Community Safety, 2012, p30). By 2017, QFES was analysing its work programs and
focusing its training on capability rather than on specific service streams (2017c,
p55).
In 2004-05, QFES opened a new multi-service Operations Response hub (Department
of Emergency Services, 2005, p39). It improved its technological capability in the
area of response from two-way repeaters and base units to Mobile Data Terminals
(MDT) in 2011-12, which incorporate other technologies, such as mapping,
navigation and reversing cameras; and provide first responders with up-to-minute
information on incidents (Department of Community Safety, 2012, p32). By 2017,
QFES had moved to the replacement of all analogue radio bases with digital
upgrades, and upgrades of the radio infrastructure and of the Triple Zero and
Computer Aided Dispatch (CAD) (2017c, p51). The Government Wireless Network
(GWN) has improved the quality of the digital radio communication by bringing all
the different divisions on to the same platform and providing benefits such as GPS
tracking (p52).
IMPLICATIONS OF CHANGING CAPABILITIES FOR SKILL REQUIREMENTS
The above changes imply a need for a diverse workforce, with advanced
technological and analytical capability.
QFES has met the demands of the new environment through training, recruitment
and a human resources management system (NEXUS) that facilitates recruitment,
health and safety management, performance and goal management, as well as
workforce planning (QFES, 2017c, p53). The system helps in building and retaining a
diverse workforce, by helping to tailor to individual needs, through arrangements
such as flexible working hours.
The State Disaster Coordination Centre (SDCC) delivered EMS training to a large
proportion of new staff, and refresher training to more experienced staff. The SDCC
workforce consists of 7 capabilities – command, operations, logistics, planning,
intelligence, aviation and public information. It has a total of 740 staff (QFES, 2107c,
p52).
QFES staff and volunteers can access online professional development training on
most devices 24 hours a day, seven days a week, from the QFES Learning Cache.
Topics covered in the course include a diverse range of subjects, such as workplace
health and safety, communication and cultural change, and in particular addresses
the development of soft skills such as emotional intelligence, dealing with conflict,
and giving and receiving feedback (p52).
To accommodate diversity, the focus has changed from just having diversity and
equity targets in 2004-05 (Department of Emergency Services, 2005, pp43-45), to a
new contemporary whole-of-QFES recruitment marketing and attraction strategy,
‘specifically designed to target potential applicants from diverse backgrounds and
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increase QFES’ profile as an attractive employer for both frontline and back-of-
house roles’ (QFES, 2017c, p97).
In response to the Allison Review, the QFES established a Cultural Improvement
Implementation Project (CIIP) in 2015 to ensure a safe, inclusive and secure working
environment for all is staff and volunteers (2017c, p70). It also appointed a chair to
oversee the implementation of the review recommendations. It achieved the
following outcomes:
• The development of a Workplace Behaviour Training Package
• An independent review of the QFES recruitment process to ensure high-quality
and diverse applicants.
• The introduction of a Harassment Information Line and Harassment Contact
Officer network to the QFES workforce
• Development of strategies, policies, etc., to ensure a safe and secure work
environment
• The revision of the required standards of QFES facilities and a program of work to
ensure safe and secure work environments. (QFES, 2017b, p70)
The strategy features a new QFES recruitment website that focuses on the promotion
of all career opportunities and career paths to non-traditional cohorts of the
Queensland community and ‘is designed to inform and assist in attracting suitable
applicants’. It also ‘includes videos promoting QFES as an employer of choice and
print materials for distribution and display at QFES sites across the state’ (2017c, p97).
The Human Capital Management Directorate provides QFES with the opportunity ‘to
design and develop programs and services tailored to its diverse workforce’ (p98),
including enabling a work-life balance (p71). ‘It offers whole-of-government flexible
work practices including job-sharing, telecommuting and family-friendly work
arrangements and a wide range of whole-of-government leave arrangements’
(p98). The 2016 Working for Queensland Employee Opinion Survey results indicated
that 46% of QFES respondents used a form of flexible working options and 72% of
QFES respondents were ‘very satisfied’ or ‘satisfied’ with their work-life balance (p98).
Additionally, 69 per cent of QFES respondents stated their workplace
culture supports people to achieve a good work-life balance. QFES
continues to review the arrangements for flexible work practices to ensure
it continues to improve as a contemporary workplace. (QFES, 2017c, p98)
They also state that:
QFES values, supports and promotes the appropriate recognition of its
workforce, paid and volunteer, for their bravery, dedication and
outstanding service above and beyond what is expected in their roles.
The QFES Honours and Awards system provides rewards and recognition
offerings to highlight and celebrate the achievements and successes of
the QFES workforce. (QFES, 2017c, p97)
The Fire and Emergency Services Support Network (FESSN) provides counselling and
support for staff for work-related problems and includes programs such as a Peer
Support Program; professional counselling, training on issues such as stress
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management and wellbeing, and support for critical incident response teams
before, during and following confronting incidents, activations and deployments
(QFES, 2017c, p99).
SUMMARY
Overall, QFES has had some significant changes in its strategic capabilities, which
are reflected in its strategic challenges as articulated in its annual reports. From
enhancing its rural/remote and indigenous capacity, it now sees itself as servicing an
increased and diverse customer base; an increase in the severity and frequency of
natural disasters; changing community expectations; changes in the volunteer
landscape; and an increase in crime and safety threats due to technological
advancements, globalisation and violent extremism (QFES, 2017c, p10).
It has met these challenges through training, recruitment of a more diverse and
capable workforce, and technological advancements, such as interactive incident
information maps. To accommodate and maintain this diverse workforce, it has put
into place strategies to improve its workplace culture to ensure a safe, inclusive and
secure working environment. It also has a new human resources management
system (NEXUS) that helps in recruitment and retention of a diverse workforce by
helping to tailor to individual needs such as flexible working hours.
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TABLE 1: SUMMARY OF RELEVANT INITIATIVES FROM QFES AND ITS PREDECESSORS, PLANS AND ANNUAL REPORTS
2004-05 2010-12 2016-17
Strategic capabilities Name Department of Emergency Services Department of Community Safety Queensland Fire and Emergency Services
Divisions Queensland Fire and Rescue Service (QFRS)
Queensland Ambulance Service (QAS)
Counter Disaster and Fire Rescue Services
(CDFRS)
Business Support Services (BSS)
Strategic Policy and Executive Services (SPES)
Queensland Corrective Services (QCS)
Queensland Ambulance Service (QAS)
Emergency Management Queensland (EMQ)
Queensland Fire and Rescue Services (QFRS)
Public Safety Business Agency (PSBA)
Queensland Fire and Emergency Services (QFES)
Queensland Police Service (QPS)
Strategic
challenges
Enhancing rural/remote and indigenous capacity
Improving building fire safety
Improving safety outcomes for at risk groups
Enhancing disaster mitigation and management
capability and capacity
Enhancing community safety initiatives and
programs
Increasing demand as population ages,
becomes more diverse with higher expectations
Logistical issues with servicing remote
communities
Maintaining community confidence with
challenging fiscal environment
Operating effective communication for front line
services
Retaining and developing a motivated, paid and
volunteer workforce
Continuing growth in population, combined with
its diversity and geographic dispersal
Predicted increase in the severity and frequency
of natural disasters
Changing community expectations around
government services
Changes in the volunteer landscape
Crime and safety threats resulting from
technological advancements, globalisation and
violent extremism
Prevention preparing
and responding to
natural disasters
Bushfire and
disaster
mitigation
Bushfire preparedness: TV awareness campaign,
brochures and a community group training
package.
Disaster mitigation $8.1 million for 38 new projects
and $3.77 million for 35 projects for previous risk
studies
$22 million for Natural Disaster Resilience Program
for 56 projects for: development of natural
hazard risk assessments for 19 councils; flood risk
management study; construction of fire trails; and
implementation of automatic rainfall and river
height monitoring
Operation Cool Burn – Network of Fire
Management groups assist local coordination
Predictive Services Unit (PSU) – provides pre-
season 0utlooks at a national level.
REDI-PORTAL (Risk Evaluation and Disaster
Information) – enables managers to identify
where risks are and prioritise mitigation
Operation Unified based on PPRR model
QFES operates as a single department with
bushfire management
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2004-05 2010-12 2016-17
Strategic capabilities Name Department of Emergency Services Department of Community Safety Queensland Fire and Emergency Services
Community
information
A 24-hour hot line with up-to-date information on
bushfires; updates also on website
A ‘Current Bushfire Incidents’ feature was made
available at website – with an easy to navigate
page enabling public to see where bushfires
were burning, the resources deployed and details
on how to act when fires threaten a community.
Incident information updated every 30 minutes,
Emergency Warning or Watch and Act messages
updated every 10 minutes
New mapping technology also brings together
information from different sources (such BoM,
Department of Transport) and presents near-real
time data on interactive maps
Disaster management Portal includes:
Interactive map which includes a layer for LGA.
Also E-contact – building community resilience
through social media.
The Events Management System (EMS) provides
real-time situational awareness and decision
support, reduces workload through automation
and replaces 5 systems and paper-based entries
with a single cloud-based system which can be
accessed anywhere where internet is available.
Changes in technology New ultra-high frequency two-way repeaters and
base units for more reliable communication with
isolated parts of the state
New multi-service Operations Response hub at a
cost of $10.7 million to respond to any
emergency in Australia and the Pacific region
Mobile Data Terminals (MDT) provides first
responders to up-to-the-minute information about
incidents and incorporate other technologies
including mapping, navigation and reversing
cameras
Total Operational Mapping (TOM) see above
5 communications centre modernisations;
replacement of 8 analogue radio bases and
antennas with digital upgrades, upgrades of
radio network infrastructure. Upgrade of Triple
Zero and Computer Aided Dispatch (CAD). The
Event Management System (EMS), see above,
reduces workload through automation and
replaces 5 systems and paper-based entries with
a single cloud based system accessible
anywhere with internet.
The Government Wireless Network (GWN)
improving quality of digital radio communications
bringing all divisions on same platform. Provides
benefits such as GPS tracking.
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FIRE AND RESCUE NEW SOUTH WALES
The Fire and Rescue New South Wales services (FRNSW) has articulated its vision and
strategic direction in its report ‘Future Outlook: Future Directions for Fire and Rescue
NSW Towards 2033’ (FRNSW, 2013). In this report, the organisation recognises that the
world around is changing and presenting both challenges and opportunities. The
changes it sees include:
• Population growth, ageing of the population
• Higher community expectations
• Cultural diversity within the population
• Divisions caused by socio-economic trends
• The impact of climate change (pp 7-8).
It sees itself as needing to be able to:
• Respond to the rapid advances in technology
• Be able to provide a flexible and safe workplace for its changing and
increasingly diverse workforce.
Overall, the FRNSW has an Equity, Diversity and Inclusion Strategic Framework, an
Aboriginal and Torres Strait Islander Employment and Engagement Strategy, the
Multicultural Programs and Service Plan (MPSP) and the Women’s Employment
Strategy; and it specifically states that its policy ‘is not framed by a discourse of
disadvantage, but by the commitment to opportunity, capability and human rights’
(FRNSW, 2017b, Section 1). For its future direction, it sees the safety and well-being of
its workforce to be of utmost importance and it plans to develop and implement a
2018-2022 Safety and Well-Being Plan (FRNSW, 2017a, p63).
The changes in the FRNSW strategic capabilities are reflected in the articulation in
their annual reports of:
• The strategic challenges they face
• In how they prevent, prepare, and respond to bushfires and natural disasters
• In the changes in technology.
STRATEGIC CHALLENGES
In 2004-05, emergency services in New South Wales were provided by the NSW Fire
Brigade (NSWFB) and the State Rescue Board (established in 1990) (Office of
Emergency Management, 2017). In 2011, the NSW Fire Brigade’s name was
changed to the Fire and Rescue NSW (FRNSW), because the service was seen to be
coping not just with fires, but facing greater challenges. In its 2004-05 Annual Report,
it specifically mentioned the challenges of drought, terrorism, global warming, an
aging population and natural disasters (NSWFB, 2005, p3).
In 2004-05, the strategic direction of the NSWFB was to provide emergency risk
management through:
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1. Community Safety – prevention and preparedness
2. Operational Preparedness – capability development
3. Emergency Management – through response and recovery. (NSWFB, 2005,
p2)
In 2011-12, the service specifically identified the key challenges to include (FRNSW,
2012, pp 9-10):
• Working within and across government, taking account of the NSW
Government’s future directions and priorities to strengthen the local environment
and communities including disaster planning and bushfire reduction targets and
strengthening public resilience to disasters and hazards.
• Environmental change as predicted by scientific research for increasing
frequency of extreme events with climate change and El Niño delivering
drought conditions followed by flooding; the increasing cost of electricity, gas,
fuel and water; along with diminishing water availability which would require
more efficient and environmentally sustainable firefighting methods.
• A rapidly changing society with population increase leading to increased
number of emergency incidents and greater vulnerability. Demographic
changes with: increases in coastal communities and declines in rural areas; the
ageing population and the increase in lone-person households raising the
potential for social dislocation and risks to safety; patterns of migration leading
to culturally diverse communities bringing new risks; and consumer technology
and social media changing interaction with government.
• Advances in technology, which is a vital tool for emergency workers, but
presents challenges that include:
- Which are the best technologies to invest in given infinite choices and finite
resources
- Relatively new technologies becoming obsolete and rapidly emerging new
technologies
- Costs associated with an upskilling workforce to apply and manage new
technologies
- Compatibility of technologies across agencies
- High community expectations about use of consumer technology and social
media, and the access and equity issues arising from these
- Privacy concerns regarding accessing personal information for agencies.
• The 2011-12 report is titled ‘Gearing Up for the Future’, reflecting its need to meet
the present demands, as well as preparing to meet the challenges of the future.
In 2011-12, the NSW Fire and Rescue services saw its core functions as emergency
and disaster prevention, preparedness, response and recovery. The annual report
suggests that the services priorities were:
1. Responding to emergencies
2. Creating a safer community
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3. Developing and managing its resources.
The 2016-17 Annual Report defines its core functions as preventing and extinguishing
fires, fighting and preventing bush fires, operating rescues units and providing expert
advice, input and regulation for fire safety measures in buildings (FRNSW, 2017a, p3).
It sees its primary strategic direction to be admired and trusted by being recognised
as a world class provider of cost effective, comprehensive, rapid and reliable
emergency prevention and response services (p21). It also sees the need for it to be
an essential arm of an integrated and seamless emergency service sector within
NSW, and to nationally support all arms of government through specialists and
expert advice and service. It sees its next strategic direction to be community
based, in that it works closely with local communities, such as Aboriginal and Torres
Strait Islanders and CALD communities (p40). It also sees the need to support and
advise on better management of fire and hazardous materials risks in the built
environment through building strategic partnerships with different sectors, such as
health care facilities, public and community housing, etc. The 2016-17 Report also
articulates the need to help build community resilience through community-based
planning and education (p50).
The change in its primary strategic direction to be an organisation that is ‘admired
and trusted’ may be a result of the investigations by KPMG and the Independent
Commission Against Corruption (ICAC) into the practices of NSW fire services in 2010
and 2011 (KPMG, 2010; ICAC, 2011). Another Inquiry was established in May 2017 to
consider the policy response to harassment, bullying and discrimination in the NSW
emergency services (Parliament of NSW, 2017). Overall, the ICAC (2011)
recommended the FRNSW improve its management capability.
PREVENTION, PREPARATION AND RESPONDING TO NATURAL DISASTERS
Prevention
In the area of bushfire mitigation, the key component of the NSWFB information and
education strategy was adding to the number of Community Fire Units (CFUs) to
bring them to 292 (NSWFB, 2005, p5). In 2012, the organisation commissioned an
independent review of its CFU program, which now comprised some 605 units, and
put out a tender for servicing CFU equipment and upgrading the CFU member
database (2005, p4). It also developed a CFU website, which was accessible to the
public and a social media website. In 2017, there were 546 CFUs and there were two
CFU apps introduced in 2016 to assist with communication. The CFU administration
app allows volunteers to update their contact and unit details and training records,
while the CFU activity app makes it easier for volunteers to activate and deactivate
during a bushfire and improves communication between CFU management and
volunteers (FRNSW, 2017a, p51). An interactive CD was developed to help fire
officers better understand prescribed burning. Fires stations were also identified to
undertake the role of natural hazard stations, with crews, who once trained, will
provide specialist support for storm recovery. The specialised skills will include working
on roofs, chainsaw skills and safe working practices (p63).
In the area of the built environment, it moved from conducting investigations,
inspections and identifying risks and hazards, to developing building codes and
developing a code of practice for installations such as those required for expanded
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polystyrene sandwich panels (EPSP). It has since then moved to cooperating with
the CSIRO in research into the design and effectiveness of residential sprinklers, and
supporting and advising industry, government and local planning authorities in
managing fires and hazardous materials, and reducing risks (FRNSW, 2017a, p36).
The Annual Report 2011/2012 also suggests that the FRNSW was involved in
researching, identifying and addressing major community risks, such as unsafe
consumer products (e.g. ethanol fuelled fire places, compact fluorescent light
globes, LPG-fuelled heaters, ceiling insulation and solar panels) and developing fact
sheets (FRNSW, 2012, p58).
Response
During 2004-05, the NSW Fire Brigade (NSWFB) enhanced its Urban Search and
Rescue (USAR) capability, with USAR-1, a 32-tonne semi-trailer designed to transport
the largest store of USAR equipment in Australia. The USAR resources provide faster
response to building collapses and complex rescues, such as train crashes, and are
a key component of the State’s ability to deal with the consequences of a terrorist
attack (FRNSW, 2017a, p62). The Commonwealth has identified the FRNSW as a
critical partner in the national USAR capability development strategy.
The Annual Report 2011/12 indicates that FRNSW is the largest provider of rescue
services, operating specialist rescue units in 182 locations. It has 2700 fire officers,
qualified and registered as rescue operators (FRNSW, 2012, p79). Rescue operations
have included rescuing people caught in transport, domestic and industrial
incidents. Specially trained teams carry out alpine, vertical and specialist rescues. Its
urban search and rescue unit was hoping to qualify as a Heavy International Rescue
team classified by the United Nations. Its USAR capabilities include: USAR 1, a
purpose built 32-tonne semi-trailer; USAR 2 and 3, purpose built pantechnicon trucks
with USAR equipment caches; USAR 4, a specialist reconnaissance vehicle; and
USAR 5 and 6, air-deployable USAR equipment caches, capable of sustaining 72
person-rescue teams for 10 days. The Australian Government has identified FRNSW
as a crucial partner in its USAR capability development strategy and it has provided
assistance after the Christchurch earthquake and the Japanese earthquake and
tsunami. The Annual Report 2016/17 suggests that FRNSW had been accredited by
the United Nations International Search and Rescue Advisory Group (INSARAG) as a
heavy USAR Task Force for international response to disasters (FRNSW, 2017a, p29). It
also introduced a new canine search capability.
In 2016-17, FRNSW responded to 12,234 non-fire rescue cases, including animal
rescues. In that year, it also enhanced its flood rescue capability with 5 water-based
flood rescue stations and 20 land-based rescue stations, with 127 water-based
technician and 565 land-based flood rescue operators.
The FRNSW also delivers hazardous materials (Hazmat) expertise and equipment
across the state. The resources include standard, intermediate and primary Hazmat
response units that deliver breathing apparatus and specialised detection
equipment to combat chemical, biological and radiological threats from industrial
accidents or acts of terrorism (p62). During 2011-12, the FRNSW responded to a
range of hazardous material incidents, which included downed power lines,
electrical short circuits, gas leaks, and fuel and chemical spills.
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Their 2011/12 Report also notes that increasingly, the FRNSW is being called to assist
the Ambulance Service of NSW at medical emergencies. In 2011-12, it responded to
1052 medical emergencies, which included cardiac arrests, childbirths, snake bites
and major trauma. All officers need to be trained in advanced first aid, oxygen
resuscitation, use of automatic external defibrillators and basic patient assessment
(FRNSW, 2012, p81).
The Annual Report 2016/17 states that the FRNSW responded to 15,541 hazardous
material incidents in that year, and it continues to work with industry groups and
government agencies to minimise the impact of Hazmat incidents on the public,
including working with the bulk tanker industry to increase awareness of FRNSW’s
role. It also worked with the Australian Maritime Authority to assist in managing
hazardous and noxious substances incidents on vessels at sea (FRNSW, 2017a, p27).
Technology
During 2004-05, the NSWFB commenced a joint project with the NSW Rural Fire
Service and the State Emergency Service aimed at identifying, selecting and
implementing a joint Emergency Services Computer-aided Dispatch system (ESCAD)
(NSWFB, 2005, p69). The ESCAD system was delivered in 2012 and included
telephony and voice recording systems, operator consoles and IT hardware (FRNSW,
2012, p87). In 2017, the disaster-recovery site for ESCAD was moved from the SES-
Wollongong facility to a refurbished site next to the new state-of-the-art FRNSW
headquarters in Greenacre and provided varied multi-path power and
communications (FRNSW, 2017a, p56). During 2017, the Automated Decision-Aid
System for Hazardous Incidents (ADASHI) was interfaced with the ESCAD to enable a
consistent view of incidents and access to critical operational information.
Additional functionality was added to the system to allow greater flexibility in
responding to incidents (p59). FRNSW is also moving from the analogue mobile radio
base to digital frequencies (p59). During 2016-17, it also completed two joint radio
network rollouts in partnership with the SES in the Murray region and installed 224
additional mobile data terminals in vehicles (now 430) (FRNSW, 2017a, p55).
In 2004-05, hydraulic structural entry equipment that incorporated latest technical
innovations was being upgraded.
FRNSW also operated primary Hazmat units in 2004-05, which provided advanced
capabilities in detection of toxic industrial chemicals, volatile substances and
chemical warfare agents. The equipment included photo and flame ionisation
detectors, chip measurement systems, radiation detectors and chemical warfare
detectors. A mobile analytical vehicle enables FRNSW to carry out on-site analysis
with specialised equipment such as a gas chromatograph-mass spectrometer. Also
four head gas detectors were to be installed on all first response fire engines over the
next three years.
By 2016-17, the FRNSW had a total fleet of 1579 vehicles, with 96 rescue and
hazardous materials vehicles. Class 1 multi-purpose off-road capable tankers carry
more water than urban fire engines. Some have Hazmat and primary rescue
capability, and a number of tankers were commissioned with Compressed Air Foam
Systems (CAFS), which increases the fire tankers extinguishing capability. The use of
CAFS is increasing.
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Diversity
Overall, the FRNSW has tried to build its capabilities to meet the changing needs of
the community and environment through investing in both its technological strength
and its human resources. It has invested in its human resources through continued
training and through recruitment, particularly in respect to improving the diversity of
its workforce. It has specific recruitment strategies to help attract staff and then have
work arrangements that would help in retaining the staff. Besides the more
traditional training and exercise programs, the service has developed elearning
modules (FRNSW, 2017a, p66) and Activity Based Working (ABW) devices (p58). It has
also developed and implemented:
• An Equity, Diversity and Inclusion Strategic Framework to facilitate a more
harmonious workplace culture (FRNSW, 2017a, p70)
• A new code of Conduct and Ethics to ensure harmonious workplace conditions
(p64)
• A Resolving Workforce Complaints Policy to prevent and resolve workplace
conflict (p72).
The 2013-14 Annual Report acknowledged that ‘a diverse workforce within the
FRNSW would assist in providing better services to the community, generate new
ideas and increase tolerance and understanding in the workplace’ (FRNSW, 2015,
p27). It specifically stated that the:
FRNSW is committed to building a workplace that:
• Reflects and values the diversity of the community it serves
• Respects individuals, accepting and celebrating differences
• Removes artificial and unnecessary barriers to progression. (FRNSW, 2015,
p27)
It recognised that the FRNSW came ‘from a low base having traditionally attracted
larger numbers of white Anglo Saxon males compared to other groups, and this is
reflected in the workforce profile’. ‘Traditional recruitment practices had only been
marginally effective’ and it was exploring other initiatives (FRNSW, 2015, p27).
It has also ‘invested in culturally appropriate promotional materials and continued to
participate in job markets aimed at attracting under-represented groups such as
women, CALD groups and indigenous Australians to a career in firefighting’ (p27).
It was also implementing the recommendations arising from the WorkCover Bullying
Prevention Survey rolled out in 2012 to improve accountability and best practice
(p28).
The sections below detail the particular steps the NSWFS has taken to improve the
diversity of its workforce and also cater for the diversity of its clients over the years.
ABORIGINAL AND TORRES STRAIT ISLANDER COMMUNITIES
In 2004-05, the NSWFB employed a full-time Aboriginal Services Officer to liaise and
work with indigenous groups. It also developed the Aboriginal Community Fire Unit
(CFU) program, where some training was provided to locals to become CFU
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members. It tried to be part of the local community by participating in local festivals.
It offered education programs in dangers of fire-setting and reducing fire risks. At the
same time, training for the NSWFB personnel was provided as part of Sacred Sites
Awareness Program to prevent accidental damage to sacred sites (NSWFB, 2005,
p29).
By 2011-12, the FRNSW was working with local land councils to identifying
opportunities to improve service delivery and setting up more CFUs in aboriginal
communities. It also participated in a whole-of-government response to issues faced
by local communities through Regional Co-ordination Management Groups. It ran
safety campaigns such as Protect your Mob and piloted programs to assist local
communities develop fire safety and prevention programs (FRNSW, 2012, p47).
It implemented strategies to attract and retain Aboriginal staff – Indigenous Careers
Expo; NAIDOC celebrations. It launched two plans – Reconciliation Action Plan
2011/16 and Aboriginal Employment and Development action Plan 2011/13 – to
enhance support for Aboriginal staff and encourage closer relationships with
indigenous communities. It employed a full-time Aboriginal Services Officer to
provide support and guidance to FRNSW staff, liaise and work with indigenous
communities (FRNSW, 2012, p62).
In 2016-17, the FRNSW continued to develop partnerships with Aboriginal and Torres
Strait Islander Communities including:
• Working with the land councils and other organisations to assist in implementing
Home Fire Safety Checks (HFSC) and other prevention strategies
• Participating in a whole-of-government response to issues faced by local
aboriginal communities through Regional Coordination Management Groups
(RCMG) and Local Emergency Management Committees (LEMC). (FRNSW,
2017a, p46)
It supports events such as local festivals and rugby league, and partnerships with
local and rural firefighters. It has partnerships with Aboriginal Pathways TAFE NSW
through the Indigenous Fire and Rescue Employment Strategy (IFARES) program to
assist local men and women become permanent firefighters. It provides a
Certificate IV in fitness. Since IFARES inception in 2014, 29 graduates have become
firefighters (p48).
CALD COMMUNITIES
In 2004-05, a red VW Beetle known as Triple Zero Bug proved very successful in
promoting key safety messages to CALD communities (NSWFB, 2005, p27).
In the area of prevention and preparedness of at risk community groups, especially
CALD groups, the NSWFB stated its commitment to the Ethnic Affairs Priorities
Statement (EAPS), as an important means of designing, implementing and
measuring initiatives to increase community participation and access to its services.
It also appointed a full time co-ordinator to oversee initiatives directed towards
groups from culturally and linguistically diverse groups, and to monitor and report on
the uptake of EAPS across the organisation. It also developed a multi-lingual CD for
critical fire safety information (NSWFB, 2005, p27). By 2011-12, it had identified and
addressed the safety needs for at-risk groups, including children, the elderly, people
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with a disability and members of the CALD communities. It had developed an online
game for children, and was working on ways to engage with communities, such as
participation in Harmony Day and developing strategic partnerships with various
groups and working with newly arrived migrants (FRNSW, 2012, p48). By 2017, the
FRNSW was targeting these groups to build community resilience (2017a, p45).
OTHER COMMUNITIES
In 2011-12, employment of a diverse range of people was actively promoted under
the theme of ‘Everyone Being Welcome’, with video clips created and posted
online showcasing job opportunities (FRNSW, 2012, p62).
It also celebrated International Women’s Day – highlighting the important
contribution of female staff to the work of FRNSW, implementing strategies to recruit,
develop and retain women in the workforce (p62).
In 2016-17, it created the role of a Family Support Officer and later an administration
assistant role specifically to assist in disability employment (FRNSW, 2017a, p70).
It was actively attempting to improve the proportion of women in its workforce
(p71).
FRNSW also partnered with the Deaf Society of NSW, Red Cross, NSW Rural Fire
Service, NSW State Emergency Service and Sydney University in the ‘Get Ready’
project that increases emergency preparedness in the deaf community. In 2016-17,
it secured NSW Government funding under the Smoke Alarm Subsidy Scheme (SASS)
to assist with the installation of 346 visual/tactile smoke alarms to wake the deaf,
deaf/blind and hard of hearing (FRNSW, 2017a, p6).
In 2016-17, FRNSW had an established women’s staff network, an LGBTIQ staff
network and an Aboriginal and Torres Strait Islander employee network. It also
participated in the annual Sydney Mardi Gras to show its support for the community
and its LGBTIQ employees. It also has a variety of awareness raising and educative
events celebrating diversity. These include Harmony Day, Reconciliation Week,
NAIDOC week, International Women’s Day and the UN Refugee Day (FRNSW, 2017a,
p70). In 2016-17, it exceeded the Public Service Commission’s target for employment
of candidates from the Refugee Employment Pool (p64).
Overall, it has improved the proportion of women in its workforce from 8.03% in 2012-
13 to 10.17% in 2016-17. Women represented 6.14% of the firefighting staff, 16% of the
senior executives and 56.44% of administration and trades staff in 2016-17 (FRNSW,
2017a, p158).
The proportion of people with Aboriginal and Torres Strait Islanders backgrounds had
increased from 2.25% in 2012-13 to 3.33% in 2016-17. They represented 3.78% of the
firefighting staff in 2016-17 (p158).
The proportion of people whose first language was not English had increased from
1.56% in 2012-13 to 2.44% in 2016-17, with the highest proportion (16.67%) being
among the administrative and trades staff (p158).
However, the proportion of people with a disability had reduced from 1.29% in 2012-
13 to 0.71% in 2016-17, and most were among the administrative and trades staff –
representing 3.56% of that workforce (p158).
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TRAINING
Training in the FRNSW has progressed from simple recruit, and professional
development incident management training to joint training exercise with other
emergency services in areas, such as urban search and rescue, flood rescue and
national and multiagency counter terrorism. The FRNSW has also developed
elearning and online courses. By 2017, it had increased its suite of elearning courses
to 63, upgraded and improved its Learning Management System (Learning Hub)
which led to greater functionality and improved reporting. It had also developed a
new ePortfolio System to enable firefighters to submit portfolios electronically.
Progression programs were also developed that blended learning with practical
work (FRNSW, 2017a, p66).
SUMMARY
The FRNSW recognised early in 2004-05 that it faced challenges from drought,
terrorism, global warming, aging population and natural disasters. It saw its strategic
direction then to provide community safety by managing risk through prevention
and preparedness, developing its capability and managing emergencies through
response and recovery. By 2011-12, it identified particular areas of the above
challenges, such as strengthening community resilience, specifying the impacts of
environmental change to include droughts due to El Nino followed by flooding and
the increasing cost of electricity, gas, fuel and water, and the need for more
environmentally sustainable fighting methods due to the diminishing water
availability.
It also added sections of the community that presented challenges, rather than just
an ageing population, and included the increased risk of social dislocation among
the increasing proportions of single person household and demographic changes
brought about by increased migration and the increases in coastal communities
and decline in rural communities. It also specified the particular challenges posed
by the advances in technology, the high costs of such technology and the need for
upskilling the workforce. By 2016-17, the FRNSW was seeing the need for it to be
admired and respected, as well as being community-based.
This change in community direction may have been due to the investigations into its
operations by KPMG and ICAC. Both investigations found problems with its
workplace culture and management capability. Hence, the organisations has been
taking steps to improve this by retraining its existing workforce and recruiting staff
from diverse backgrounds to generate new ideas, and increase tolerance and
understanding. It has undertaken several initiatives to recruit from Aboriginal and
Torres Strait Islander communities, more women and have closer ties with CALD
communities. It has improved its response capability through significant
technological changes, such as the Automated Decision-Aid System for Hazardous
Incidents (ADASHI), interfacing with its Emergency Services Computer-aided
Dispatch system (ESCAD). This has also required that it improve the capability of its
workforce through training, including through elearning. Increasingly the FRNSW is
also being called out to assist the Ambulance Service at medical emergencies,
which has required increased training in areas which are quite distinct from the
traditional roles of firefighters.
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TABLE 2: SUMMARY OF RELEVANT INITIATIVES FROM FRNSW AND ITS PREDECESSOR PLANS AND ANNUAL REPORTS
2004-05 2010-12 2016-17
Strategic
capabilities
Name NSW Fire Brigade Fire and Rescue NSW Fire and Rescue NSW
State Rescue Board of NSW State Rescue Board NA
Challenges Need to restructure as name no longer reflects
challenges of drought, terrorism, global warming,
aging population and natural disasters
Increasing frequency of extreme events, climate
change – El Nino and drought, La Nina. Increasing
cost of electricity, gas, fuel and water. Rapidly
changing society – composition, population
growth, ageing, culturally diverse. Advances in
technology: combination of GPS, robotics, sensors,
low level automation, networked computer
systems, smart home integration and consumer
technology.
Be an essential arm of an integrated and seamless
emergency services sector within NSW and
nationally
Prevention,
preparedness
and response
Bushfire
mitigation
Community Fire Units (CFUs) key component of
bushfire information and education strategy. Set up
another 42 CFUs, taking the total to 292.
$1.2 million to establish further 100 additional CFUs
and funding supplemented over 2 years by $580 000
from Natural Disaster Mitigation program.
In 2012, 605 CFUs. Commissioned an independent
review of CFU program; tender for servicing CFU
equipment; upgrading CFU member database;
developing CFU website accessible now to public;
developing a social media website; and
collaboration with experts to strengthen
community resilience.
In 2017, 546 CFUs. Two CFU apps were introduced
in 2016 to assist communication with CFUs. The CFU
Admin app allows volunteers to view and update
their contact and unit details and training records.
The CFU Activity app makes it easier for volunteers
to activate and deactivate during a bushfire,
improves communication between CFU
management and volunteers and provides real
time information.
Built environment Inspections, advise, carry out investigations
Identify major risks and hazards
Building inspections in hospitals, aged care facilities
and hazardous sites
Inspected 1077 commercial, industrial and
residential buildings in 2011-12
Developed a code of practice for installation of
expanded polystrene sandwich panels (EPSP)
designed to enhance safety
Building code development
Research with CSIRO to design and build unit for
testing residential sprinklers and 396 inspections
Support and advise industry, Government and
local planning authorities to better manage fire
and hazardous materials risks in built environment –
fire safety in: health care; public housing;
accommodation for disabled; and public schools
building code development
Response Urban Search and Rescue (USAR) capability
enhanced with USAR 1 – a 32-tonne semi-trailer to
transport USAR equipment, which provides faster
response to building collapses and complex rescues
Hazmat capability
Operating specialist rescue units in 182 locations,
with 2700 qualified and registered recue operators.
Specially trained teams to carry out alpine, vertical
and specialist rescues. Capabilities include: USAR1;
USAR 2&3, purpose built pantechnicon truck; USAR
4, a specialist reconnaissance vehicle; USAR 5&6,
air-deployable equipment caches able to sustain
72 persons for 10 days.
Increased responses to medical emergencies.
Recognised by the UN as a heavy USAR Task Force
for international response to disasters
Enhanced flood rescue capability
Working with industry groups and Australian
Maritime Authority to assist in managing hazardous
and noxious materials in industry and on vessels at
sea
Technology Emergency Services computer-aided dispatch
system (ESCAD) selected
Hazmat units with advanced capabilities for
detection of toxic materials
ESCAD delivered in 2012, included telephony and
voice recording system, operator consoles and IT
hardware
ESCAD moved to new site and the automated
decision-aid system for hazardous incidents was
interfaced with ESCAD, also moving from
analogue to digital frequencies
Hazmar and other tankers equipped with CAFs
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SOUTH AUSTRALIAN STATE EMERGENCY SERVICES
The South Australian State Emergency Service’s (SASES) articulated role as a
reliable and trusted volunteer service building safe and resilient communities
has remained the same since 2011-12, as has its specified mission to minimise
loss of life, injuries and damage from emergencies and natural disasters.
It should be noted that there was no Annual Report for 2016-17 available.
However, there was one for 2015-16 (SASES 2016a), a Corporate Plan for 2015-
18 (SASES 2015), and a Strategic Directions document for 2017-20 (SASES 2017a).
STRATEGIC CHALLENGES
The 2004-05 Annual Report does not mention any strategic challenges
specifically, however it does mention that ‘recent years have seen a much
greater involvement by SASES Units in the mitigation of the effects of storm and
flood’ (SASES, 2005, p10). It identified its strategic direction to be emergency
planning and management, and emergency responses. The 2011-12 Annual
Report states that it will need to ‘focus on reducing the impacts from flooding,
storms and extreme weather, enhancing emergency management capabilities
and improving levels of community resilience’ (SASES, 2012, p20). It also notes
that with the adoption of the National Disaster Resilience Strategy, there had
been a shift in expectations of emergency services. In 2015-16, it noted that it
needed strategies to focus on building knowledge and understanding of the
risks storms, extreme heat and flooding pose to our communities and increase
community awareness, preparedness and risk reduction’ (SASES, 2016a, p13).
PREVENTION, PREPAREDNESS AND RESPONSE
The 2004-05 Annual Report states that the SASES had adopted the
Preparedness, Prevention, Response and Recovery (PRRR) concept to all
incident planning and management. Hence, it needed trained and disciplined
rescue personnel in response to a broad range of emergency incidents (SASES,
2005, p11). It also needed to plan for disaster situations, and provide community
education and awareness programs. It provided a range of rescue and support
services (including traffic accident rescue, storm and flood damage, land
search, animal rescue, vertical rescue, marine search and rescue and general
and disaster rescue) (from pp 14-15). In 2013-14, it provided executive officer
support to all Zone Emergency Management Committees (ZEMCs) (SASES, 2012,
p17).
Staff also participated in risk assessment workshops based on the National
Emergency Risk Assessment Guidelines (NERAG). It also conducted several
Extreme Heat and Extreme Storm risk assessment workshops in collaboration
with the Bureau of Meteorology and SAFECOM. It established a Community
Engagement Unit in May 2012, which had three roles: community education
including FloodSafe, StormSafe and (later) HeatSafe programs; recruitment and
retention advice and support for SASES units; and provision of support for SASES
promotions and public relations (SASES, 2012, p13). In 2015-16, it articulated that
it is needs to be informed by evidence-based research. It was planning to
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
26
establish a flood intelligence and planning team within the service, and
enhancing its incident management capabilities (SASES, 2016a, p26).
TECHNOLOGY
In 2004-05, the SASES recognised the need to use modern communication
technology involving a variety of systems, including fixed and mobile phones,
pagers, the Government radio network, and other long range networks. In
2011-12, the SASES was rolling out the SA Government Radio Network (GRN)
digital equipment, and introducing the SA Computer Aided Dispatch system
(SACAD), which had interagency interoperability (SASES, 2012, p14). In 2015-16,
it was replacing its GRN radios, upgrading its core IT systems, and further
developing its integrated operational systems, including the SES Incident and
Information Management System (SESIIMS) (SASES, 2016a, p6).
TABLE 3: SUMMARY OF RELEVANT INITIATIVES FROM SASES AND ITS PREDECESSORS, PLANS AND ANNUAL REPORTS
2004-05 2011-12 2015-16
Strategic
challenges
Recent years have seen a much
greater involvement by SASES
Units in the mitigation of the
effects of storm and flood
Focus on reducing the impacts
from flooding, storms and
extreme weather, enhancing
emergency management
capabilities and improving
levels of community resilience
Needed strategies to focus on
building knowledge and
understanding of the risks
storms, extreme heat and
flooding pose to our
communities and increase
community awareness,
preparedness and risk reduction
Prevention and
preparedness
Adopted the Preparedness,
Prevention, Response and
Recovery (PPRR) concept to all
incident planning and
management; hence, it needed
trained and disciplined rescue
personnel in response to a broad
range of emergency incidents. It
also needed to plan for disaster
situations and provide
community education and
awareness programs.
Risk assessment workshops by
Community Emergency Risk
Management (CERM) with a
number of councils
Community education including
Floodsafe, Stormsafe and
Heatsafe
educating communities to be
resilient
Needed to be informed by
evidence-based research
Was planning to establish a
flood intelligence and planning
team within the service and
enhancing its incident
management capabilities
Technology Need to use modern
communication technology,
involving a variety of systems,
including fixed and mobile
phones, pagers, the
Government radio network and
other long-range networks
Rolling out the SA Government
Radio Network (GRN) digital
equipment and introducing the
SA Computer Aided Dispatch
system (SACAD), which had
interagency interoperability
Replacing its GRN radios,
upgrading its core IT systems
and further developing its
integrated operational systems
including the SES Incident and
Information Management
System (SESIMS)
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
27
BACKGROUND TO THE SASES WORKFORCE STRUCTURE
The Annual Report 2015-2016 (SASES, 2016a) states that the SASES ‘response
capability was improved through investments in assets, infrastructure and
equipment, and through increasing the range and accessibility of training
courses available for volunteers’ (p6). It increased the number of training staff
temporarily to develop curriculum and training materials and continued its
investment in on-line learning technologies (p6).
However, the SASES Workforce Plan indicates that:
In the previous nine years the South Australian State Emergency
Service (SASES) has experienced difficulties in relation to volunteer
training, retention and support to units. In December 2010, volunteer
numbers within the service had dropped to an all-time low, having
experienced a twenty per cent decline in membership over the five
preceding years. (SASES, 2016b, p8)
At the same time, there was an 80% decline in volunteer trainers and assessors
reducing the capability of the organisation to build up its workforce. This was
happening while call out rates had a 180% increase in the number of jobs over
the ten-year period to 2014 (p8).
It further states:
An extensive culture survey conducted in 2009 identified a number
of workforce issues that had an impact on staff and volunteer
satisfaction and an action plan was developed to address the
priority issues. Following this in 2013, a ‘pulse’ survey was undertaken
to check progress. Findings from this process highlighted on ongoing
need to address key areas which indicated perceptions of poor
performance or low satisfaction. (SASES, 2016b, p8)
Furthermore the SASES reports that ‘Progressive savings targets applied to the
South Australian Fire and Emergency Services Commission (SAFECOM) over the
last six years had also resulted in a substantial decline in corporate support to
SASES’ (SASES, 2016b, p8), including ‘heavy reductions in strategic services,
corporate services and critical operational support such as Volunteer Support
Branch (staffing now less than half previous level)’ (p8).
To address these issues, the SASES undertook a review of its staffing
arrangements in 2011-12 and ‘included the development of a comprehensive
discussion and issues paper, the conduct of several staff and volunteer
workshops and bilateral meetings and discussions with a broad range of
stakeholders’ (p8).
It goes on to say:
The 2012-13 Workforce Plan described a new structure for SASES
which reduced the layers of management, reduced the number of
administrative regions, adopted ten new districts and centralised
administrative, business and finance support functions. During 2012,
appointments were made for the two new Regional Commander
and 10 District Officer positions and administration, business and
finance support functions were centralised.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
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Over this same period, two reforms were implemented which
involved the establishment of new volunteer-based entities: the
Community Engagement Unit (CEU) and the Workplace Health
Safety (WHS) Support Team. In addition, funding was secured under
the Natural Disaster Resilience Program to establish and pilot a
volunteer recruiting capability within the CEU.
During 2014 the Government committed to reforming the fire and
emergency services sector to improve community safety outcomes.
(SASES, 2016b, p8)
It stated ‘the need for aligning, harmonising and modernising the sector’s
organisational arrangements to ensure frontline people were supported with
consistent doctrine and contemporary integrated support services’ (p8).
The 2015-2016 Budget process provided additional funding to SASES for three
new initiatives. The Report suggests that this will support recruitment of an
additional 3.5 ongoing FTEs and 4x12 month contract FTEs (SASES, 2016b, p8).
It further suggests that:
Impacts of an ageing workforce would be realised in 2015-2016 with
three confirmed retirements and the likelihood of other staff
resignations/retirements throughout the year generating recruitment
activity and testing succession planning and knowledge
management. (SASES, 2016b, p8)
In 2015, the SASES successfully applied to the Natural Disaster Resilience
Program State Strategic Project for funding to map the SASES workforce to help
form a broader workforce development plan. Overall, the project concluded
that the ‘sector’s workforce was not well defined and not only is there a need
for individual development, but there are also potential gaps in understanding
of required emergency management capabilities at on organisational level’
(Government of South Australia n.d., p5).
The only report to mention promoting diversity and inclusion in the workforce
was ‘Strategic Directions 2017-2020’ (SASES, 2017a). The SASES Annual Report
2015-16 (2016a) did have a table reflecting the gender diversity of its workforce.
In several age brackets, it had a higher proportion of females than the 2014
benchmark. For example, in the 40 to 49 age group 23.5 % of the workforce in
that age bracket was female compared to the workforce benchmark of 11.1%.
It did not have anyone with a disability on its workforce and no reference was
made to people from CALD or Aboriginal and Torres Strait Islander backgrounds
(SASES, 2017a, Appendix 1, p26).
The Strategic Directions Report 2017-2020 also specifies the need to support
and sustain the volunteer workforce through:
• developing and implementing a flexible, volunteering model;
• developing and implementing volunteer retention strategies;
• providing training to improve skills in managing volunteers;
• improving training and implementing programs to prevent further losses in
the volunteer workforce, but making efforts to expand the workforce.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
29
(SASES 2017a, p5)
The SASES Corporate Plan 2015-2018 specified certain objectives, which
included:
• SASES has a program that sustains a positive culture based on SA Fire and
Emergency Service Values and Behaviours Framework.
• SASES provides a safe working environment for volunteers, staff and
contractors. (SASES 2015, p11)
SUMMARY
The SASES has experienced difficulties in relation to its volunteer training and
retention. Some of these difficulties are due to the progressive savings targetsof
the South Australian Fire and Emergency Services Commission. It undertook a
review of its staffing arrangements in 2011-12 and developed a new workforce
plan in 2012-13. Since then it has a significant workforce mapping project. Its
Strategic Directions 2017-2020 report does mention the need to promote
diversity and inclusion in its workforce and also the need to develop and
implement a flexible volunteering model, and volunteer retention strategies
and improving skills to manage volunteers.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
30
CONCLUSIONS
Overall, both the QFES and the FRNSW have had significant changes in their
strategic capabilities, mainly due to the strategic challenges they perceived as
facing them. In 2004-05, the QFES saw its strategic challenge as primarily
enhancing its rural/remote and indigenous capacity. By 2016-17, it saw itself as
an increased and diverse customer base facing; an increase in the severity and
frequency of natural disasters; changing community expectations; changes in
the volunteer landscape; and an increase in crime and safety threats due to
technological advancements, globalisation and violent extremism (QFES,
2017c, p10). It has met these challenges through training, recruitment of a more
diverse and capable workforce, and technological advancements, such as
interactive incident information maps. To accommodate and maintain this
diverse workforce, it has put into place strategies to improve its workplace
culture to ensure a safe, inclusive and secure working environment. It also has a
new human resources management system (NEXUS) that helps in recruitment
and retention of a diverse workforce by helping to tailor to individual needs
such as flexible working hours
The FRNSW recognised early in 2004-05 that it faced challenges from drought,
terrorism, global warming, aging population and natural disasters. At the time, it
saw its strategic direction as providing community safety by managing risk
through prevention and preparedness, developing its capability and managing
emergencies through response and recovery. By 2011-12, it identified particular
areas of the above challenges, such as strengthening community resilience,
specifying the impacts of environmental change to include droughts due to El
Nino followed by flooding, the increasing cost of electricity, gas, fuel and water,
and the need for more environmentally sustainable fighting methods due to the
diminishing water availability. It also added sections of the community that
presented challenges, rather than just an ageing population, and included: the
increased risk of social dislocation among the increasing proportions of single
person household; demographic changes brought about by increased
migration; the increases in coastal communities; and decline in rural
communities. It also specified the particular challenges posed by the advances
in technology, the high costs of such technology and the need for upskilling the
workforce. By 2016-17, the FRNSW was seeing the need for it to be admired and
respected as well as being community based. This change in community
direction may have been due to the investigations into its operations by KPMG
and ICAC. Both investigations found problems with its workplace culture and
management capability. Hence, the organisations has been taking steps to
improve this by retraining its existing workforce and recruiting staff from diverse
backgrounds to generate new ideas, and increase tolerance and
understanding. It has undertaken several initiatives to recruit from Aboriginal
and Torres Strait Islander communities, more women and have closer ties with
CALD communities. It has improved its response capability through significant
technological changes, such as the Automated Decision-Aid System for
hazardous incidents (ADASHI) interfacing with its Emergency Services
computer-aided dispatch system (ESCAD). This has also required that it improve
the capability of its workforce through training, including through elearning.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
31
Increasingly, the FRNSW is also being called out to assist the Ambulance Service
at medical emergencies, which has required increasing training in areas which
are quite distinct from the traditional roles of firefighters.
The SASES has experienced difficulties in relation to its volunteer training and
retention. Some of these difficulties are due to the progressive savings targets of
the South Australian Fire and Emergency Services Commission. It undertook a
review of its staffing arrangements in 2011-12 and developed a new workforce
plan in 2012-13. Since then it has a significant workforce mapping project. Its
Strategic Directions 2017-2020 report does mention the need to promote
diversity and inclusion in its workforce, and also the need to develop and
implement a flexible volunteering model, volunteer retention strategies and
improving skills to manage volunteers.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
32
TRENDS IN TASKS UNDERTAKEN BY THE CASE STUDY
ESOS
This section provides an analysis of trends in the types of incidents attended.
These data are indicators of the changing mix of tasks undertaken by ESOs. The
best run of data we have is for FRNSW. Data are available from 2008/09 to
2016/17 for various categories of incidents attended. QFES has extraordinarily
fine-grained data on incidents attended, but unfortunately only for the three
years since it has been established, 2015-17.
We have aggregated the detailed QFES data into the same categories as used
by FRNSW. However, in the three years for which data are available in
Queensland, no particular trends have emerged. Given the duration of its data,
the trend analysis focuses on New South Wales.
Table 4 for NSW shows that overall, the incident and emergencies attended has
fallen by about 10% in the eight years to 2016/17 from 137,297 in 2008/09 to
123,711 in 2016/17. It also suggests that there have been important shifts in the
types of tasks undertaken by FRNSW. There has been a decline in fire and
explosions attended of almost 32% over the period, while the number of non-
fire rescue calls have increased by 27% over the same period. System-initiated
false alarms which comprise almost 40% of all call outs have declined by 12.6%
since 2009/10. To gain a better understanding of these trends, Figures 2 and 3
provide a breakdown of the main types of incidents that have shown a
particularly strong trend over the period.
TABLE 4: FIRE AND RESCUE NSW, NUMBER AND TYPE OF INCIDENTS AND EMERGENCIES ATTENDED (FRNSW ANNUAL REPORTS)
2008/0
9
2009/1
0
2010/1
1
2011/1
2
2012/1
3
2013/1
4
2014/1
5
2015/1
6
2016/1
7
Per cent
change since
2008/09
Total fires &
explosions
31,929 31,036 26,607 25,564 28,884 25,341 21,952 22,287 21,784 -31.8%
Total non-
fire rescue
calls
9,618 10,711 10,859 11,220 10,745 11,067 11,448 11,520 12,234 27.2%
System
initiated
false alarms
n.a. 52,648 52,502 52,233 49,181 46,384 49,092 45,905 46,013 -12.6%*
All other
emergencie
s &
incidents
105,368 51,588 51,832 52,938 55,542 55,237 56,953 53,817 55,914 8.4%
Total fires,
explosions &
other
emergencie
s
137,297 135,272 130,941 130,735 133,607 126,962 127,997 122,009 123,711 -9.9%
NOTE: * SINCE 2009/10.
Figure 2 shows the major trends in the types of call outs for FRNSW exhibiting
substantial change. The number of structure, vehicle and rubbish fires attended
has declined substantially, presumably reflecting better prevention and
management strategies for these types of fires.
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
33
On the other hand, calls for medical assistance have increased by almost 15%
per annum in the period to 2016/17 from 2009/09. This reflects a new non-
disaster related capability developed by FRNSW. As first responders, their efforts
are well-rewarded in terms of lives saved. Other non-fire rescues also increased
substantially.
FIGURE 2: FRNSW TRENDS IN SELECTED INCIDENTS AND EMERGENCIES ATTENDED (FRNSW ANNUAL REPORTS)
Figure 3 shows the trends in the more climate-influenced incidents and
emergencies, such as bush and grass fires, and storms, floods and other natural
distaters. Both have shown a downward trend, although with considerable
climate-related variability. In particular, the number of call outs for bush and
grass fires has fallen by an average annual rate of 5.1%, while storms and floods
call outs have declined by 2.5% per annum.
The declining trend in bush and grass fires, particularly given the metropolitan
focus of FRNSW, is likely to be associated with the capability developed in
preparation and planning leading to a greater emphasis on this aspect of fire
management by FRNSW and engagement with the community.
The other striking aspect of the chart is the strong negative correlation between
the number of call outs for fires and storms/floods. It would appear that the high
bushfire years are associated with low storms and floods, and vice versa. This
was especially the case in 2012/13, when bushfire and grass fires call outs
peaked at over 10,000, while those for floods and storms fell to under 4000.
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
9,000
10,000
2008/09 2009/10 2010/11 2011/12 2012/13 2013/14 2014/15 2015/16 2016/17
Structure fires
Vehicle fires
Rubbish fires
Medical assistance
Other non-fire rescues including industrial and vertical rescues
-3.6
-7.8
+11.4
-3.7
+14.7
Average annual %
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
34
FIGURE 3 FRNSW TRENDS IN BUSH AND GRASS FIRES, AND STORMS, FLOODS AND OTHER NATURAL DISASTER INCIDENTS, AND
EMERGENCIES ATTENDED (FRNSW ANNUAL REPORTS)
SUMMARY
This analysis of FRNSW data demonstrates that major changes have occurred in
the mix of work undertaken by FRNSW. Fire-related call outs have fallen, while
those of non-fires have increased. False alarm call outs have also declined. The
reason for this shift has been the significant decline in call outs for structure fires
and rubbish. Given the efforts to increase capability in fire prevention, it is
reasonable to suggest that these capability changes have contributed to these
reductions.
On the other hand, the rapid increase in medical assistance call outs has been
enabled by the development of a non-disaster capability in FRNSW. While these
are currently a small proportion of total call outs, they are growing very rapidly
indicating a strong community need for this service.
0
2,000
4,000
6,000
8,000
10,000
12,000
2008/09 2009/10 2010/11 2011/12 2012/13 2013/14 2014/15 2015/16 2016/17
Bush and grass fires Storm, floods and other natural disasters
-5.1
-2.5
Average annual %
CHANGING CAPABILITIES OF EMERGENCY SERVICE ORGANISATIONS | REPORT NO. 364.2018
35
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